International "living" report: Long-Term Care and COVID-19 vaccination, prioritization and data - LTCcovid.org
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International “living” report: Long-Term Care and
COVID-19 vaccination, prioritization and data
Shoshana Lauter, Klara Lorenz-Dant, Eleonora Perobelli, Ann Caress, Samir K.
Sinha, Greg Arling and Adelina Comas-Herrera
Last updated 26th January 2021
Authors
Shoshana Lauter, Klara Lorenz-Dant, Adelina Comas-Herrera (Care Policy and Evaluation Centre, London School of Economics and
Political Science), Eleonora Perobelli (Observatory on Long Term Care, CERGAS SDA Bocconi), Ann Caress (School of Human and
Health Sciences, University of Huddersfield, UK), Samir K. Sinha (National Institute on Ageing, Ryerson University), Greg Arling
(School of Nursing, Purdue University, US)
ltccovid.org
This document is available through the website ltccovid.org, which was set up in March 2020 as a rapidly shared collection of
resources for community and institution-based long-term care responses to Covid-19. The website is hosted by CPEC at the
London School of Economics and Political Science and draws on the resources of the International Long Term Care Policy
Network.
Corrections and comments are welcome at s.e.lauter@lse.ac.uk. This document was last updated on 26th January 2021 and may
be subject to updates and revision.
Copyright: © 2020 The Author(s). This is an open-access document distributed under the terms of the Creative Commons
Attribution NonCommercial-NoDerivs 3.0 Unported International License (CC BY-NC-ND 3.0), which permits unrestricted use,
distribution, and reproduction in any medium, provided the original author and source are credited. See
http://creativecommons.org/licenses/by-nc-nd/3.0/.
Suggested citation
Lauter S, Lorenz-Dant K, Perobelli E, Caress A, Sinha SK, Arling G and Comas-Herrera A (2021) International “living” report: Long-
Term Care and COVID-19 vaccination, prioritization and data. LTCcovid.org, International Long-Term Care Policy Network, CPEC-
LSE, 26th January 2021.
Follow us on Twitter
@shoshlauter, @LorenzKH, @adelinacohe, @eleperobelli, @DrSamir Sinha @CPEC_LSE, @researchisace, @RyersonNIA,
@LTCcovid
ltccovid.org | Living report: International approaches to COVID-19 vaccination prioritization and data 11. Key points
• This report aims to provide an overview of progress in the delivery of COVID-19 vaccinations to people
who use and provide long-term care. It is a collaborative “living report” that is updated and expanding
regularly, please email s.e.lauter@lse.ac.uk if you would like to contribute.
• The report shows data on COVID-19 vaccinations for populations that either use and provide long-term
care or are likely to do so. As of 26th January, these data are only available for a few countries, as most
countries do not yet share disaggregated vaccination figures according to the characteristics of people
who are vaccinated. In contrast, many countries provide data disaggregated by geographical area.
• An initial review of vaccine prioritization documents shows that care home residents and personnel are
consistently listed among the group with the highest priority. Care partners and family members of
care home residents and unpaid carers of people living in the community are only explicitly mentioned
in a few countries. There are few mentions of people living with dementia or people with learning
disabilities, although there is growing pressure in some countries (e.g. United Kingdom) for people with
learning disabilities to be prioritised.
• On the 26th of January we have found data on COVID-19 vaccinations for LTC populations for 11
countries, but there are important problems with comparability, so the data in this report can only
provide a broad indication of scale and is not suitable for detailed analysis.
• While most countries for which we have found data stated that care home residents were amongst the
highest priority group, this does not necessarily translate into practice. In some countries the initial
vaccination effort was entirely directed towards care homes, despite logistical challenges. So far, Israel,
Denmark, Scotland and Cyprus, and some regions in Spain and Canada’s provinces have completed (or
nearly completed) the 1st doses of vaccination of care home residents and staff, while England,
Northern Ireland and Croatia, are close to achieving this goal too.
• There is marked contrast in the targeting of vaccinations, whereas some countries have initiated their
vaccination rollout by targeting care homes, England, Germany, Italy and the United States have
adopted a broader vaccination approach, targeting health care professionals and older people living in
the community before care home residents and staff. This may be due to the logistical difficulties in
delivering vaccines requiring very cold storage to care homes.
• This report also includes a summary of early (non-scientific) evidence on the international experiences
in vaccination the LTC population. Countries are facing major challenges in respecting their rollout
plans (in LTCFs and among the whole population) due to logistical challenges related to, on the one
hand, the logistical challenges posed by some of the vaccines in terms of refrigeration and, on the
other, the delay in the vaccine delivery announced by both Pfizer and AstraZeneca. There are also
some indications of reluctance of part of LTC staff and, to a lesser extent, residents, to get vaccines.
Finally, the need for consent policies for residents who lack capacity is another reason why it is more
challenging to vaccinate people living in care homes, where a high proportion of residents have
dementia, compared to older people living in the community.
ltccovid.org | Living report: International approaches to COVID-19 vaccination prioritization and data 22. Introduction This document gathers data on the COVID-19 vaccine rollout among people who use and provide long-term care. The aim is to update this document regularly and collaboratively, expanding the countries covered. Please email s.e.lauter@lse.ac.uk if you would like to provide information on your country or if you would like to be involved in future versions of the report. 3. Data on COVID-19 vaccination 1st doses among people who use and provide Long-Term Care In this section we report available data on COVID-19 1st dose vaccinations for the population who use and provide Long-Term Care. For overall country vaccination progress, the website Ourworldindata.org provides regularly updated data at national level 1. Similarly to Ourworldindata, we include data from official sources (in some cases media reports of official announcements). We seek to include data on the following groups: people who live and work in care homes, people who use and provide care in the community (including unpaid carers) and groups of people who have higher probabilities of using LTC (older people and people with conditions such as dementia and people with other disabilities). Data on vaccinations of populations who use and provide LTC is publicly available for very few countries, and it is not always presented in the same way. For example, in some countries data on vaccinations in care homes shows vaccinations of care home staff and residents together, whereas in others only data for residents is available. In some countries, only the share of care homes that have been visited by vaccination teams is available. Data on the share of care home residents who cannot be vaccinated due to existing COVID infections, counter indications, delays in obtaining consent or refusals is rarely available. In some cases we have not included data because we have not found the correct denominator. Please note that the data presented here are not robust enough for analysis or for detailed country comparisons, but are reported in order to document early evidence on the degree of prioritisation, in practice, of LTC populations in the roll out of the COVID-19 vaccination programmes. 1 Many of the data sources on vaccinations we have used in this report were identified through https://ourworldindata.org/covid-vaccinations. ltccovid.org | Living report: International approaches to COVID-19 vaccination prioritization and data 3
Table 1. Data on COVID-19 Vaccination rollout in groups that use or provide long-term care and older people 2, most recent
disaggregated data available up to 26th January
Country Date % Population % Care home % Care home % Population % Population % of all 1st
given at least 1 residents residents & aged 60 + 80+ given at vaccination
dose of vaccine given at least staff given at given at least least one doses given to
one dose of least 1 dose one dose of dose of care home
vaccine of COVID-19 COVID-19 COVID-19 residents and
staff
Belgium 3 22/01/2021 1.22% N.A. N.A. N.A. 11.18% N.A.
Canada 4 22/01/2021 1.83% N.A. N.A. N.A. N.A. Uncertain
Costa Rica 5 15/01/2021 0.19% N.A. N.A. N.A. N.A. 10.93%
Croatia 6 11/01/2020 0.72% 66.90% N.A. N.A. N.A. 55.43%
Cyprus 7 16/01/2021 0.85% Around 90% N.A. N.A. N.A. 53.99%
Denmark 8 25/01/2021 3.16% 90.47% N.A. N.A. N.A. 19.82%%
Germany 9 25/01/2021 1.97% 64.16% 47.6%**. N.A. 8.36% 79.5%**
Israel 10 25/01/2021 26.25% Completed* Completed N.A. N.A. 8.86%
Italy 11 26/01/2021 2.16% 46.47% N.A. 2.09% 2.64% N.A.
Netherlands 12 19/01/2021 0.44% Starting N.A. N.A. N.A. 48.05%
18/01/2021
England (UK) 13 24/01/2021 10.18% 75.00%* N.A. N.A. Over 75% 5.57%
Northern Ireland (UK) 14 05/01/2021 2.43% 64.57% 65.32% N.A. N.A. 45.40%
Scotland (UK) 15 24/01/2021 8.22% 95.00%* N.A. N.A. N.A. 20.50%
Wales (UK) 16 24/01/2021 8.59% 66.18% 71.34% N.A. 40.06% 12.98%
United States 17 25/01/2021 6.60% 14.28%*** N.A. N.A. N.A. 11.75%***
*The data for Israel combines care home staff and residents. Also, the data for England and Scotland is based on an announcement of the share of
people vaccinated, but no information is provided on, for example, the percentage of care home residents who may have refused the vaccine or
may have been excluded from vaccination due to contraindications (for example allergies).
** health and long-term care workforce
*** the data for care homes in the US is only for the number of doses and not the numbers of people, so this figure is an overestimate
Sources: as indicated in the footnotes for each country
2 All data on population sizes has been obtained from: https://population.un.org/wpp/ All data on number of care home residents, unless specified,
has been obtained from https://ltccovid.org/wp-content/uploads/2020/10/Mortality-associated-with-COVID-among-people-living-in-care-homes-
14-October-2020-3.pdf
3 COVID-19_Weekly_report_FR.pdf (sciensano.be)
4 https://covid19tracker.ca/
5 https://www.ccss.sa.cr/noticias/general?ccss-registra-24-859-vacunas-contra-la-covid19-aplicadas
6 https://vlada.gov.hr/news/beros-croatia-registering-fewer-infections-hospitalisations/31274
7 Ανακοινωθέντα Άρθρο - PIO estimated based on the % of care homes where staff and residents have been vaccinated
8 https://covid19.ssi.dk/overvagningsdata/vaccinationstilslutning and https://www.sst.dk/-
/media/Udgivelser/2021/Corona/Vaccination/Kalender/Vaccinationskalender-8-
9 https://www.rki.de/DE/Content/InfAZ/N/Neuartiges_Coronavirus/Daten/Impfquotenmonitoring.html
10 https://www.israel21c.org/israel-has-vaccinated-everyone-in-elder-care-facilities/
11 https://www.governo.it/it/cscovid19/report-vaccini/
12 https://www.rivm.nl/covid-19-vaccinatie/cijfers-vaccinatieprogramma
13 https://coronavirus.data.gov.uk/details/healthcare?areaType=overview&areaName=United%20Kingdom, https://www.bbc.co.uk/news/uk-
55786409 and Analysis of population estimates tool - Office for National Statistics (ons.gov.uk)
14 New phase in Covid-19 vaccination programme is a game-changer | Department of Health (health-ni.gov.uk)
15 https://coronavirus.data.gov.uk/details/healthcare?areaType=overview&areaName=United%20Kingdom and https://www.bbc.co.uk/news/uk-
55710758
16 Rapid COVID-19 virology - Public - Public Health Wales Health Protection | Tableau Public
17 https://covid.cdc.gov/covid-data-tracker/#vaccinations, this may include 2nd doses
ltccovid.org | Living report: International approaches to COVID-19 vaccination prioritization and data 4Figure 1. Share of total population and of care home population who have had the 1st dose of the COVID-19 vaccine, most recent
data available up to 26th January 2021
100%
80%
60%
40%
20%
0%
Israel Scotland Denmark Cyprus England Croatia Wales (UK) Northern Germany Italy United
(UK) Care home residents given
(UK) at least one dose of COVID-19 vaccine
Ireland States
(UK)
Population given at least 1 dose of COVID-19 vaccine
Source: as per table 1.
Data for vaccinations of people who use or provide LTC in Spain is not available at national level, but some
Autonomous Communities report having completed the first dose vaccinations for all care homes that had no
COVID-19 outbreaks (Asturias 18, Galicia 19, La Rioja 20) and are starting the second doses.
4. Prioritisation of people who use and provide Long-Term Care for COVID-19
vaccinations
As countries began approving major pharmaceutical companies’ COVID-19 vaccines in early December, the
question of which populations would be first (and second and third) to receive them loomed large. Most
countries are prioritising groups at highest risk of death and or infections based on their age and health status,
job-related exposure and living in congregate settings.
LTC Covid has begun reviewing the prioritization plans of different countries with a particular focus on the
language regarding long-term care residents, carers, and personnel (see Table 2).
In terms of priority trends (i.e. those whom councils typically declare “Group 1” sub-populations), we find
long-term care residents and personnel consistently listed, while partners/families of residents and
unpaid/at-home carers are not explicitly mentioned in most countries. We also note that those deemed
clinically vulnerable are amongst the top-prioritized, but there is little mention of those receiving long-term
care for neurological illnesses (e.g. dementia, Alzheimer’s) and people with learning disabilities. In the United
Kingdom, people with Down’s Syndrome were added to the list of individuals classed as ‘clinically extremely
vulnerable’ in November 2020, due to evidence of increased risk, hence will be higher priority for vaccination.
There have been calls in the UK for this to be extended further, including a legal challenge. It is rare to find
explicit mention of those receiving at-home and outpatient long-term care.
An analysis of the COVID-19 Actuaries Response Group has compared the groups prioritized in the UK
vaccination rollout plan to the COVID-19 deaths observed among those groups. They found that the priority
18 https://coronavirus.asturias.es/-/el-gobierno-del-asturias-comienza-la-administraci%C3%B3n-de-la-segunda-dosis-de-vacuna-anticovid
19 https://www.laregion.es/articulo/galicia/nieves-cabo-es-primera-persona-completar-fase-vacunacion-galicia/20210117093914999688.html
20
https://www.larioja.com/la-rioja/coronavirus/directo-sala-alba-20210114111414-nt.html
ltccovid.org | Living report: International approaches to COVID-19 vaccination prioritization and data 5groups represent less than half of the UK population yet amount to 99% of the COVID-attributed deaths. They
also estimated the number of vaccinations required to prevent one COVID-19 death and found that this
increased rapidly when moving down the priority order; for example, among care home residents 20
vaccinations would be needed to prevent one death, compared to 2,000 among people aged 60 and over, and
to 47,000 for the rest of the population.
Table 2. Long-Term Care Group Prioritization (Based on Countries’ Advisory Council Reports)
Older People Care Care Unpaid Community People who LTC Clinically People with People Other Notable
People living Home Partners Carers LTC use workers vulnerable dementia, with Populations
(typically in Care Personnel of workers community- (all) groups (i.e. neurological learning
75+) Homes people based LTC comorbidities) illness disabilities
who live services
in Care
Homes
Australia ✓(1) ✓ ✓(1) ✓(1) ✓(1) ✓(1)
(indigenous
communities,
non-medical
essential
workers)
Austria ✓(2) ✓(1) ✓(1) ✓(1) ✓(2) ✓ (staff in
health care
with high risk
of infection)
(1)
✓(2) (people
working in
critical
infrastructure)
Belgium ✓ ✓ ✓
Canada ✓ ✓ ✓ ✓ In 4 ✓
Canadian ✓ ✓
Provinces
Denmark ✓(3) ✓(1) ✓(4) ✓(6) ✓(6) ✓(2) ✓(5) ✓(2)
✓(4) ✓(4) (those
performing
critical
functions in
society)
Estonia ✓ ✓ ✓ ✓
France ✓(1) ✓(1) ✓(1) ✓(1)
✓(1) ✓(1)
Germany ✓(1) ✓(1) ✓(1) ✓(2) ✓(2) ✓ (1)(2) ✓(2)(3) ✓(2) ✓(2) 21 ✓ 22
✓(1)
Greece ✓(2) ✓(1) ✓(1) ✓(1)(2)
✓(1)
21and staff supporting people with learning disability in residential and community/ domiciliary care settings
22(1) staff in health care with very high risk of infection and those caring for people at greatest risk, (2) those at high risk and staff in public health services and
relevant hospital positions
ltccovid.org | Living report: International approaches to COVID-19 vaccination prioritization and data 6Hungary ✓(3) ✓(2) ✓(2) ✓(2) ✓(2) ✓(2) ✓(5)
India ✓(2) ✓(1) ✓(2) ✓
✓(1) ✓(1) Non-medical
frontline
essential
workers (e.g.
teachers)
Indonesia ✓ ✓ ✓ ✓
(working age
adults)
Ireland ✓ ✓(1) ✓(1)
Israel ✓ ✓ ✓ ✓ ✓
Italy ✓ ✓ ✓(1)
Malta ✓(1) ✓(1) ✓(1) ✓(1)
✓(2) (Staff and
✓(2) residents of
mental
hospitals)
The ✓(1)
Netherlands ✓(1) ✓(1)
Norway ✓(2) ✓(1) ✓(1)
Singapore ✓ (2) ✓(1) ✓(1)
Spain ✓ ✓ ✓ ✓ ✓
United ✓ ✓ ✓ ✓ ✓
Kingdom
USA ✓ ✓ ✓ ✓ ✓ ✓
Non-medical
frontline
essential
workers (e.g.
teachers)
Annex 1 contains details of advisory council reports on vaccination priorities.
5. From prioritisation to delivery: initial evidence of international experiences
and challenges
The speed of regulatory approval, as well as constraints in the supply of vaccines, means that some countries
have started vaccinating earlier than others. This, as well as differences in logistical approaches to delivering
vaccinations, explains national differences in overall vaccination rates.
ltccovid.org | Living report: International approaches to COVID-19 vaccination prioritization and data 7As prioritisation plans are finalized and rolled out, countries are facing new challenges regarding the delivery
of vaccinations to long-term care populations—some that were expected, and others that may have prompted
unforeseen ethical and logistical questions. Here we highlight some of initial findings on what has been
happening internationally in the transition from prioritization plan to vaccination delivery. This information
has been gathered from news reports and government announcements.
5.1. Logistical challenges for getting vaccines into care homes
1. A major challenge presented early in the rollout of vaccinations has been the storage of the
Pfizer/BionTech and Moderna vaccines. Most countries have found it challenging to work around the
requirement of providing ultra-cold (-70 degree Celsius in the case of the Pfizer/ BioNTech vaccine) storage
units to care homes 23. The Oxford/Astrazeneca vaccine (which can be stored at normal cold temperatures,
between 2 and 8 degrees Celsius) was approved for administration in early January in the United Kingdom
but has not yet been approved in other countries. The challenge of meeting the Pfizer vaccine
requirements may explain why in some countries, despite a stated first priority for people living in care
homes, in practice people who could travel to vaccination centres were vaccinated first.
2. In Germany, mobile teams have started to provide the vaccine in care homes, however, the limited
number of available vaccine doses and the complex cooling chains that so far were required have been
posing challenges to quick progress.
• There appears to have been a lag in vaccination delivery during the holiday season, when staffing was low
and clinics had reduced hours.
• In the United Kingdom, the responsibility of vaccination of long-term care home residents has been placed
on GP-led clinics, creating new challenges for their already-demanding schedules and disallowing care
home nurses from taking initiative to vaccinate residents with whom they have established relationships.
To encourage GP assistance in long-term care facility vaccination drives, the NHS is giving GPs £10 per jab
boost.
• In the United States most vaccinations in long-term care facilities are being administered under contract by
major drug store chains (Walgreens, CVS, and others), but there are concerns that this may have slowed
down the speed of delivery.
• In the USA an ‘aspirational target’, set by the Trump administration, of having all residents and staff in
long-term care facilities vaccinated by Christmas 2020 was not achieved, with reports of uneven access in
different areas of the country contributing to this.
• In Canada, there are reports of 100% first-dose vaccination in long-term care facilities having been
achieved in PEI and Alberta (as of 15th and 17th Jan 2020 respectively. Other provinces such as Quebec and
BC are nearly complete. However, in Manitoba, concerns have been reported regarding access of
vulnerable home-dwelling individuals to the vaccine, whilst in Ontario, there has been concern around
how it initially prioritized non-LTC frontline health care workers over LTC residents and staff that worsened
its ability to vaccinate LTC residents efficiently especially as vaccine shortages emerged.
• Following Pfizer’s announcement of a delay in the delivery of the vaccine, many European Countries are
facing great challenges in guaranteeing their rollout plan’s schedule. This could harm the possibility of
administering the second dose to the prioritized groups who already received the vaccine, which in most
countries include nursing homes’ residents. For example, Italy received 29% less of the expected doses in
the January 18-24 week, with sharp variability among regions: some received less than half (e.g. – 53% in
Veneto, which is currently among the hardest hit territories by the virus) of the planned doses. It will
receive -20% of the expected doses in the January 25-31 week. Pfizer noted two reasons for the delay: 1)
Anecdotally, vaccinations in Catalonia (Spain) were partly delayed due to a delivery of refrigerating units being delayed when France closed its border with the
23
United Kingdom in response to the COVID-19 VUI – 202012/01 variant.
ltccovid.org | Living report: International approaches to COVID-19 vaccination prioritization and data 8the major plant of Puurus requires some maintenance to increase the production, 2) EMA confirmed that
six doses, rather than five, can be extracted from each BioNTech/Pfizer vial through a low dead volume
syringe. The company asserts that its agreement with the European Union is based on a set numbers of
doses (not vials). The Italian Government announced it will take legal action against Pfizer over the coming
days. Also, AstraZeneca announced that initial volumes will ‘be lower than originally anticipated’, further
harming the sustainability of European Governments’ vaccination plans.
5.2. Staff and residents hesitant about and/or refusing the vaccine
• Many care home personnel in the United States are reportedly wary of receiving the vaccination 24, with
some studies suggesting that close to 30% of healthcare workers are ‘vaccine hesitant.’ Much of the
uncertainty is rooted in the newness of vaccination and the expediency of its approval, as well as the
convenience and cost related to getting the vaccine as has been the case in parts of Canada where LTC
workers must travel to vaccination clinics to receive their vaccine. Similar hesitancies have been reported
on in the United Kingdom, Malta, Italy, and Canada though exact numbers of refusals by care workers in
any of these countries are difficult to find (as of January 25th, 2021).
• Wariness and refusal of the vaccination in the United States also stem from a long history of distrust due
to mistreatment of lower-income communities of colour and migrants by the healthcare sector.
• In Germany, a survey suggested less than half of nurses wanted the vaccine, but this is response to a
theoretical question. In practice, a more confusing portrait appears to be manifesting; the Minister of
Health says some nursing homes are seeing staff vaccination rates of 80%, while others are at
approximately 20%.
• A “high degree of reluctance” is also being seen amongst care home personnel in European countries such
as France and Austria; one December study in France showed skepticism amongst French care home
workers as high as 76%. According to Austrian national radio, around only half of care facility staff in the
Vorarlberg region were willing to be inoculated. Health Ministries are trying to remain hopeful that the
end of January will bring results with different numbers than what polls have suggested.
5.3. Residents unable to be vaccinated
• While countries may state that they are looking to vaccinate all care home residents and staff (and
sometime announce this has been achieved), in practice there will be some people who cannot vaccinated.
This may be due to counterindications (for example for people with a history of severe allergic reactions to
the vaccines or components of the vaccines. While negative reactions to the vaccinations appear to be
rare, health ministries across the globe are cautious to remind long-term care residents and personnel that
allergies and allergic reactions to past vaccinations and medications are justifiable reasons as to refuse the
vaccine.
• Pregnancy and Vaccination: The Netherlands explicitly advises against those who are pregnant receiving
the vaccination. The United States determines it to be a ‘personal choice,’ and encourages those who are
pregnant to speak with their healthcare providers. Israel is now recommending that pregnant people
receive it; according to the Health Ministry’s position paper (in cooperation with Israel’s fertility research
association), “the illness caused by the coronavirus is liable to cause harm during pregnancy...and lead to
early deliver,” so the importance of immunization outweighs unsubstantiated fears.
24
See also https://pubmed.ncbi.nlm.nih.gov/33370448/
ltccovid.org | Living report: International approaches to COVID-19 vaccination prioritization and data 9• There are also different approaches to vaccination in care homes where there are active COVID-19
outbreaks, which may result in delays in vaccinations in affected care homes, due to risk considerations.
5.4. Consent policies and challenges for people who lack capacity
Obtaining consent for people who lack capacity is another reason why vaccinations in care homes take longer
than vaccinating other population groups.
• Disagreements between families and care home staff over the vaccination of residents who are unable to
consent have already reached the courts. In Spain, a care home went to court to overturn the refusal of
vaccination by the family (legal guardians) of a person living with dementia in the care home. The judge
ruled in favour of the care home, claiming that “’the low risk’ of vaccine harming the woman’s health was
outweighed by the dangers of remaining exposed to the infection.”
• In the UK, The Alzheimer’s Society has released a report on consent to COVID-19 vaccination in relation to
dementia and the Mental Capacity Act of 2005.
• In Germany, the have also been discussions about information and consent among people living in care
homes and especially for those who lack capacity. It is required that the legal guardian of people without
capacity have received information from a medical doctor before being asked for their consent.
• In Italy, there has been large discussion regarding vaccination consent for elderly residents of nursing
homes who lack capacity and are without legal guardianship: the law has established that the nursing
home becomes the legal guardian and has 48 hours to identify relatives (up to the third degree of
relationship) that can express the consent for the elderly to be vaccinated.
5.5. Outbreaks following the first round of vaccination
• There are reports in many countries25 of care homes where there have been COVID-19 infections shortly
after the first round of vaccines were administered. It is understood that full protection from the vaccine
should have been developed around one week following the second vaccination. In the reported cases, it
was assumed that infection took place shortly before or after the first round of vaccines were delivered. A
particular dire case of a long-term care home recently hit hard with the virus amidst its vaccination
program is in Barrie, Ontario.
• On a positive note, early reports from Israel suggest that, 14 days after the 1st dose was administered,
infection rates decreased by 50% among those who received the dose.
5.6. Reported side effects from the vaccine
• Reporting of side effects from the vaccine in Germany is very low. By 14 January, 842,455 people had
received the vaccine. Out of this total, there were 325 reported cases with suspected side effects (0.53
suspected cases per 1,000 vaccine doses), 51 suspected cases with severe side effect (0.08 suspected cases
with severe side effects per 1,000 vaccine doses) and 10 deaths following vaccination. Those who were
recorded to have died until up to four days after they had received the vaccine were between 79 to 93
years old and suffered from severe underlying illnesses. It is not assumed that these deaths were linked to
the receipt of the vaccine.
• The Norwegian Medicines Agency is currently investigating the recent deaths of 23 frail older patients
after receiving the Pfizer vaccination, however, these deaths were among a population that experiences
on average 400 every week. “The agency has...concluded that common adverse reactions of mRNA
25
Rödinghausen: Corona-Ausbruch in Seniorenheim nach Impfungen - Westfalen-Lippe - Nachrichten - WDR,, Dos residencias de mayores sufren brotes después de
la primera dosis de la vacuna (lavozdegalicia.es), https://www.timesofisrael.com/240-israelis-diagnosed-after-vaccination-underscore-need-for-continued-vigilance/
ltccovid.org | Living report: International approaches to COVID-19 vaccination prioritization and data 10vaccines, such as fever, nausea, and diarrhea, may have contributed to fatal outcomes in some of the frail
patients,” but is not alarmed and determines these to be unique and rare occurrences. In Germany,
specialists at the Paul Ehrlich Institute are similarly investigating ten deaths of older patients in palliative
care following vaccination; they have determined thus far using current data that “they died from their
main diseases, coinciding in time with the vaccination.” A similar report is ongoing in France.
5.7. Vaccination and other public health measures
The impact of vaccination on transmission is as yet unknown, leading to growing recognition that public health
measures, such as physical distancing will need to continue even after the roll out of vaccination programmes.
A recent modelling study has highlighted that this will need to include long-term care facilities.
6. Brief summaries of country vaccine rollout experiences
Canada
See the full report on Canada’s rollout by Samir Sinha, Cameron Feil, and Natalie Iciaszczyk here (published
January 25th, 2020).
Information on Canada’s COVID-19 vaccination rollout comes from the National Advisory Committee on
Immunization, which recommended that the first stage of dosage distribution prioritize residents and staff in
senior homes, adults over 70, health-care workers, and adults in Indigenous communities. However,
jurisdiction over the provision of health care ultimately falls to each province and territory; their
corresponding strategies include complete vaccination of long-term care home residents and staff by February
2021. Four provinces have also chosen to prioritize family caregivers of LTC users in their strategies.
Alongside some globally observed issues in vaccine rollout (e.g. freezer storage planning, vaccine hesitancy),
many Canadian provinces and territories have not yet released updates with details of their long-term care
vaccination rollout plans. Canada has further announced a slight delay in their Pfizer-BioNtech shipments from
Europe (with new deliveries only picking up again during the week of February 1st), forcing provinces and
territories to revise their strategies and delay second-dosage administration. Ontario has indicated that
despite the delay, the province has no intention of letting this affect their LTC resident population and in fact
announced on January 25th that it would speed up its target to administer an initial vaccine dose to all of its
LTC home residents by 10 days with a target completion date of February 5th, 2021.
By the 22nd January 2021 two provinces have completed vaccination of their designated LTC populations
receiving publicly-funded LTC: Prince Edward Island and Alberta (on 15th and 17th January respectively). The
authors are seeking data for other provinces, but so far: British Columbia (90%), Quebec (87%) and Ontario
(60%) have reported these levels of vaccination.
United States
Information on COVID-19 vaccinations comes from the US CDC COVID-19 Vaccine Tracker and CDC LTC and
Pharmacy Partnership web sites. According to CDC guidelines, residents and staff of nursing homes and other
long-term care facilities, along with healthcare workers, are to receive top priority for vaccinations. Most
states, which can set their own priorities, have followed the CDC guidelines.
The rollout of the vaccines is targeted to “long-term care facilities” defined broadly to include nursing
facilities, assisted living facilities, memory centres and other congregate settings for older or disabled people.
ltccovid.org | Living report: International approaches to COVID-19 vaccination prioritization and data 11Most vaccinations in long-term care facilities are being administered under contract by major drug store chains (Walgreens, CVS, and others). Facilities sign up to participate in the program. Vaccines are administered en masse through “clinics” held on-site in long-term care facilities. Vaccinations are reported as number of doses. A total of 2,714, 487 doses, either 1st or 2nd doses, had been administered in long-term care facilities as of January 25, 2021. This is nearly double the number doses administered on January 15 (1,384,963); it represents an increase of nearly 133,000 doses per day. The number of long-term care facility residents probably exceeds 2 million, while the number of health and other workers associated with long-term care facilities is probably roughly the same. A total of 22,734,243 doses (19,252,279 1st, and 3,346,390 2nd) had been administered to the overall population, including long-term care, as of that date. With the rapid rollout of the vaccines, the numbers are increasing rapidly. West Virginia has been unique in being the only US state to opt-out of a federal partnership program that uses major pharmacy chains to deliver vaccines to nursing homes, but rather used its local pharmacies with the additional help of the US National Guard to get all of its 214 vaccinated by December 30th, 2020. Connecticut became the second US State to announce the completion of vaccinating all of its long-term care facilities by January 8th, 2020. The CDC offers guidance to long-term care residents and staff on the risks, benefits, and decision to be vaccinated for COVID-19. Individuals can refuse vaccination for any reason. Written consent is not required by Federal law but states may have their own requirements. Pharmacy chains or facilities may establish their own requirements regarding verbal, email, or formal written consent from residents or persons making medical decisions for them. No data are yet reported by the CDC, pharmacy partners, or the states on the rate of persons refusing the vaccine. 7. Discussion Despite most countries announcing that people living in care homes had the highest priority, there is divergence, in some countries, between this statement and the degree to which vaccinations have been targeted to care home residents. The evidence on the rollout of vaccines (at this stage mostly captured by media reports of official announcements) shows that the process of vaccinating people in care homes poses particular challenges: from the complexity of obtaining consent of some care home residents (see this article outlining the issues in relation to people living with dementia), to the logistical difficulties posed by the vaccines that require very low temperatures and the challenge of delivering the vaccines at a when infection rates in care homes are very high in many countries. This means that, in some countries, despite statements of priority for care home residents, it has been easier to first vaccinate older people who could travel to vaccination sites (such as hospitals or health care centres) instead of care home residents. For further information: The Our World in Data site, which tracks weekly the announcements of countries beginning to vaccinate. The Oxford COVID-19 Government Response Tracker (OxGCRT) is an ongoing collection of coronavirus pandemic policy responses from 180+ countries tackling issues related to travel, education, and healthcare administration. ltccovid.org | Living report: International approaches to COVID-19 vaccination prioritization and data 12
The World Health Organization’s (WHO) Strategic Advisory Group of Experts on Immunization (SAGE) produced a values framework for the allocation and prioritization of COVID-19 vaccination (September 12th, 2020) and is currently making a request for information on vaccine rollout effectiveness and impacts. The European Center for Disease Control and Prevention’s (ECDC) Overview of COVID-19 vaccination strategies and vaccine deployment plans in the EU/EEA and the UK (as of December 2nd, 2020). The Federation of European Social Employers has published a report on how individual EU countries are prioritizing vaccination of the social care workforce (as of January 15th, 2021). We are hoping to continuously update and curate the above tables to reflect various countries’ rollout plans, specifically with regards to long-term care users and personnel. If you would like to contribute information on your respective country, please contact us at s.e.lauter@lse.ac.uk. ltccovid.org | Living report: International approaches to COVID-19 vaccination prioritization and data 13
ANNEX 1. Advisory Councils prioritisation plans, by country.
This table provides an ongoing summary with links to the reports by which Table 2 was formulated.
Table 3. List of Advisory Boards and Published Prioritization Plans (By Country)
Country Advisory Board Vaccine Rollout Priority Groups (Summary)
“As of 13 November 2020, the initial priority groups for COVID-19 immunisation
identified by ATAGI are:
• People who have an increased risk, relative to others, of developing severe
disease or dying from COVID-19: older people; people with certain pre-
existing underlying medical conditions; Aboriginal and Torres Strait Islander
people
• People at an increased risk of exposure, infection and transmission of COVID-
19, or are in a setting with high transmission potential: health and aged care
workers; other care workers such as group residential care workers and
disability care workers; people in other settings where the risk of virus
transmission is increased such as correctional and detention facilities, and
meat processing plants.
• People working in critical services: select essential services staff such as
emergency services providers, defence forces, public health staff and staff
managing quarantine facilities; people working in supply and distribution of
essential goods and services such as food, water, electricity,
telecommunications and other critical infrastructure.
Australian Technical
Regular updates from the Department of Health are accessible here.
Advisory Group on
Australia Immunisation (ATAGI) Read the full ATAGI report here.
On 26 December 2020 the Federal Ministry of Social Affairs, Health, Care and
consumer protection published the COVID-19 vaccine prioritization recommendations
development by the national vaccination committee.
In the first phase people with the highest priority including residents and staff in care
and nursing home, staff in health care sector with high risk of exposure and people
aged 80 years and older.
The second phase will include people with existing illnesses (including dementia) and
their closes contacts (especially of those living in residential care settings), domiciliary
Bundesministerium
care workers, people aged 75 to 79 years.
Soziales, Gesundheit,
Pflege und The full strategy providing an overview of the seven priority groups is available here, in
Austria Konsumentenschutz German.
Published in July 2020, The Superior Health Council of Belgium advised prioritization of
1) workers in the healthcare sector (broadly), 2) people over 65 years of age, and 3)
people with higher risk due to comorbidity (e.g. cancers, cardiovascular diseases,
diabetes).
Government
Commission on On December 3rd, the COVID-19 Task Force produced a vaccination rollout strategy
Belgium Coronavirus available here, in Dutch.
ltccovid.org | Living report: International approaches to COVID-19 vaccination prioritization and data 14Recommended prioritization (but determined by federal/provincial/territorial
discussions):
“1) Those at high risk of severe illness and death from COVID-19 (Advanced age; Other
high-risk conditions (to be defined as the evidence base evolves)
2) Those most likely to transmit COVID-19 to those at high risk of severe illness and
death from COVID-19 and workers essential to maintaining the COVID-19 response
(Healthcare workers, personal care workers, and caregivers providing care in long-
term care facilities, or other congregate care facilities for seniors; Other workers most
essential in managing the COVID-19 response or providing frontline care for COVID-19
patients; Household contacts of those at high-risk of severe illness and death from
COVID-19
3) Those contributing to the maintenance of other essential services for the
functioning of society (Examples: those who cannot work virtually and have
differential exposure to COVID-19 (e.g., police, firefighters, grocery store staff)
4) Those whose living or working conditions put them at elevated risk of infection and
where infection could have disproportionate consequences, including Indigenous
communities (Examples: settings where physical distancing and other infection
prevention and control measures are challenging, access to healthcare infrastructure is
reduced, and infection could have disproportionate consequences).”
Read the full preliminary guidance statement here and the policy report here
(modified Nov. 03, 2020).
National Advisory
Committee on Read the full guidance statement on the prioritization of initial doses of COVID-19
Canada Immunization (NACI) vaccine(s) here (modified Dec. 12, 2020)
“It is the Danish Health Authority's professional assessment that the target groups for
the vaccination programme should be given priority in the following order:
1) Residents in nursing homes, etc.
2) People aged ≥ 65 years who receive both personal care and practical assistance.
3)People aged ≥ 85 years.
4) Personnel in healthcare, elderly care and selected parts of the social sector who are
at particular risk of infection or who has been identified as performing a critical
function in society.
5) Selected persons with conditions and diseases that result in a significantly increased
risk of severe illness from COVID-19.
6) Selected relatives of persons at significantly increased risk of severe illness from
COVID-19 or relatives who are indispensable as carers.”
Denmark Danish Health Authority Read the full vaccination programme site here (in English or Danish).
Notice from the Ministry of Social Affairs (3rd January 2021): Priority is for health
professionals and healthcare professionals, nursing home staff and residents, people
over 70 years of age, and people with health conditions that increase their
vulnerability to COVID-19. Vaccination to other target groups and the general
population will take place as soon as soon as sufficient COVID-19 vaccines become
Estonia Ministry of Social Affairs available.
First phase, scheduled for January and February, prioritizes:
“-The elderly residing in institutions (eg nursing homes)
-The professionals working there and at high risk (age over 50 years, diseases)
Ministry of Solidarity and
-All health professionals, including police, firemen and to-home aids for over 50 years
France Health
and / or patients with comorbidities
ltccovid.org | Living report: International approaches to COVID-19 vaccination prioritization and data 15-People with disabilities housed in institutions and personnel are engaged aged 50 and
older / or with comorbidities.”
Full plan presented here.
The initial position paper produced by the advisory committee in November 2020 is
linked here (in English).
The rollout plan beginning January 2021 is linked here in German.
A summary of the German vaccination strategy can be found on LTC Covid’s Blog
here. From the summary:
“The German Federal Ministry of Health emphasises that high risk groups and
medical staff will be among those who will be given first access to the
vaccination once it becomes available. It specifically lists: 1) people living in
care and nursing homes; 2) people aged 80 years and older; 3) staff working
in health care settings with particularly high risk of exposure (e.g. A&E, staff
Standing Committee on caring for COVID-19 patients); 4) staff in health care setting in close contact
Vaccination (STIKO), with groups at particularly high risk (e.g. Haemato-oncology, transplant
German Ethics Council, medicine); 5) care workers in domiciliary and residential long-term care for
The National Academy of older people; 6) others working in care in nursing homes in contact with
Germany Science Leopoldina residents.
The nationwide campaign entitled “Eleftheria” prioritizes (Group One): health and
social services staff, staff and residents of nursing homes; patients, staff and residents
of rehabilitation centers and care centers for the chronically ill; priority staff for critical
functions in Government. Group Two will prioritize those 70 and older and those
deemed clinically vulnerable.
Greece Ministry of Health The full report (in Greek) can be found here.
National Public Health Centre: only people over 18 with a valid social security number
who have not been diagnosed with COVID-19 in the past 6 months are eligible for
vaccination, in the following order of priority:
1. Health care professionals (started on December 26)
2. Residents and staff in care homes
3. Law enforcement staff working in epidemic defence
4. People aged 60 or above
5. Younger people with chronic conditions
National Public Health 6. Critical infrastructure workers
Hungary Centre 7. General public
India’s vaccination rollout will begin on January 16th, following recent approval of
Covaxin (Indian firm Bharat Biotech) and Covishield (Astrazeneca).
Priority will be given to healthcare workers and non-medical essential frontline
workers (appx. 30 million people). This will be followed by those 50 and older and
Ministry of Health and
under-50 population groups with co-morbidities deemed clinically vulnerable (appx.
India Family Welfare
270 million people). You can find the Prime Minister’s press release here.
According to Reuters (January 4th, 2021), Indonesia is taking a novel approach and
prioritizing working-age adults following the vaccinations of frontline health workers
and public servants.
Indonesia Health Ministry
ltccovid.org | Living report: International approaches to COVID-19 vaccination prioritization and data 16For more information on COVID-19 developments and protocols, the government
provides this website.
Ireland’s Vaccination Allocation Scheme can be found here.
National Immunisation
Advisory Committee
As of December 13th, Ireland is first and foremost prioritizing those 65+ who live in
(NIAC) and Department
long-term care facilities, and those who work in them. These groups are followed by
Ireland of Health
those 70 and older in the following order: 85+, 80-84, 75-79, 70-74.
According to the Israeli Ministry of Health’s Coronavirus Information website, those
first eligible for the COVID-19 vaccine were healthcare workers and individuals over
the age of 60.
Ministry of Health’s Through a decentralized approach, long-term care institutions and nursing
Corona National homes are amongst the top-priority vaccination sites. The Ministry of Health
Campaign Information aims to have all nursing home and LTC residents and workers vaccinated by
and Knowledge Center mid-January.
More information can be found on the regularly-updated COVID-19
Israel
dashboard here.
On December 12th, the Ministry of Health published the Italian strategic plan for the
vaccination against Covid-19. The plan identifies three priority groups for the
vaccination:
1) Front-line health and LTC personnel
2) Nursing homes’ residents
3) People aged 80 or above
These three categories together account for 6,416,372 people (although there might
be an overlap between groups), almost 11% of the Italian population.
For more information, read the Italian strategic plan for vaccination against Covid-19.
Italy has also produced a national immunisation campaign website with live tracking of
Italy Ministry of Health vaccinations.
On December 7th, Malta’s Health Minister informed Parliament of three priority
cohorts to receive the vaccine in January: 1) Staff and residents in homes for the
elderly and mental hospital patients, 2) healthcare workers in private and public
hospitals, 3) People aged 85 and over. The second round in February would prioritize
all other frontline workers and people aged 80+.
The Minister’s speech in parliament and review of the vaccination rollout plan can be
Malta Ministry of Health found at this site. For more details, access the ministry’s COVID-19 dashboard here.
Prioritization of vaccination (beginning in January) includes:
-Acute care hospital staff (staff working in intensive care units, A&E departments and
on COVID-19 wards) and ambulance crews, who are directly involved in the care and
treatment of COVID-19 patients.
-Care professionals working in nursing homes, small-scale residential homes and
disability care homes, district nurses and social support workers.
-Nursing home residents and residents of homes for people with intellectual
disabilities.
Ministry of Health,
The Netherlands Welfare and Sport Platform can be found here, with a flowchart in Dutch available here.
First prioritization groups include: 1) Residents in nursing homes and selected health
Folkehelseinstituttet personnel groups, 2) Age 85 years and older and selected health personnel groups, 3)
(National Institute of Age 75-84 years , 4) Age 65-74 years and persons between 18 and 64 years with
Norway Public Health) diseases / conditions with a high risk of serious course.
ltccovid.org | Living report: International approaches to COVID-19 vaccination prioritization and data 17Full programme site and plan accessible here (in English and Norwegian).
According to a press conference with Health Minister Gan Yim Yong on January 4th,
Singapore is currently prioritizing the vaccination of frontline health workers, including
staff at community care facilities and dedicated stay-home notice facilities. Starting in
February, seniors aged 70+ will be prioritized.
Read up on the Health Ministry’s COVID-19 developments and vaccination protocols
Singapore Ministry of Health here.
“The following group prioritization has been established for the first stage:
1. Residents and health and social care personnel in care homes for older
people and people with disabilities
2. Front-line health personnel.
3. Other health and social care personnel.
4. Dependent people with disabilities who require help from others
(noninstitutionalized highly dependents).”
Spain Ministry of Health Last update of document setting out priorities (November 23rd, 2020).
The initial December report by JCVI is linked here, with continuous updates (last:
December 31st, 2020) found here.
Summary: “Nine Priority Groups, Primarily Based on Age:
1) Residents in a care home for older adults and their carers
2) All those 80 years of age and over; Frontline health and social care workers
3) All those 75 years of age and over
4) All those 70 years of age and over; those deemed clinically extremely
vulnerable, etc... - includes people with Down’s Syndrome since November
2020.
Joint Committee on A press release by the Department of Health and Social Care published on 4th January
Vaccination and states that “GPs and local vaccination services have been asked to ensure every care
United Kingdom Immunization (JCVI) home resident in their local area is vaccinated by the end of January.”
"ACIP’s ethical principles for allocating initial supplies of COVID-19 vaccine, namely to
maximize benefits and minimize harms, promote justice, and mitigate health
inequities, support the early vaccination of 1) health care personnel (HCP) and 2) long-
term care facility (LTCF) residents." December 3rd, 2020 statement here.
Sub-prioritization details were updated December 23rd:
Phase 1a (ongoing) includes healthcare personnel and long-term care facility residents.
Phase 1b includes frontline essential workers and those aged 75+.
Phase 1c includes those 65+, those with underlying medical conditions, and a broader
definition of essential workers.
A CDC Report on the importance of vaccinating LTCF Residents was published on
Center for Disease
December 28th.
Control’s Advisory
Committee on
Immunization Practices
The National Governors Association has also released a report that looks at key
USA (CDC's ACIP)
themes, strategies, and challenges of COVID-19 vaccination plans in individual states
ltccovid.org | Living report: International approaches to COVID-19 vaccination prioritization and data 18and territories (December 9th, 2020). ltccovid.org | Living report: International approaches to COVID-19 vaccination prioritization and data 19
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